DO NOT MERGE Update permissions flags for all users before attempting to

restore permissions.

bug: 140274903
Test: cts-tradefed run cts-dev -m CtsPermissionTestCases -t android.permission.cts.SplitPermissionTest
on both user 0 and user 10.

Also (running on u10):
$ adb install out/.../CtsAppThatRequestsLocationPermission29.apk
$ adb shell pm grant --user 10 android.permission.cts.appthatrequestpermission android.permission.ACCESS_COARSE_LOCATION
$ adb install out/.../CtsAppThatRequestsLocationPermission28.apk
$ adb shell dumpsys package android.permission.cts.appthatrequestpermission

Verify that ACCESS_BACKGROUND_LOCATION is granted to user 10

Change-Id: I3cd4365ca5abce292a190ca7abca4e4e8fbf61c4